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TEXAS LEGISLATIVE HISTORY AND STATUTORY CONSTRUCTION
RULES, TOOLS AND THINGS TO THINK ABOUT
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Purpose:All things you’ve learned so far
about federal legislative processOur Job to Texas-ize it
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WHAT GRINDS THE REPRESENTATIVE’S GEARS
BIGGEST MYTHS AND MISCONCEPTIONS ABOUT THE TEXAS LEGISLATURE
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MEET A LEGISLATOR
Why UH Law School?
The Lesson of Mediation Training
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BAD JOB INTERVIEW QUESTIONS WHAT IS THE BEST ATTRIBUTE AS A LAWYER THAT HAS PREPARED YOU TO BE A LEGISLATOR?
WHAT IS THE WORST?
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THE FIVE FUNCTIONS OF A LAWYER1. “WISE COUNSELOR TO ALL MANNER OF MEN IN
THE VARIED CRISIS OF THEIR LIVES WHEN THEY MOST NEED DISINTERESTED ADVICE”
2. A SKILLED ADVOCATE3. DO HIS PART TO IMPROVE THE PROFESSION,
THE COURTS, AND THE LAW4. ACT AS AN INTELLIGENT, UNSELFISH LEADER OF
PUBLIC OPINION5. TO ANSWER THE CALL OF PUBLIC SERVICE
WHEN IT COMES
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MYTH OF LEGISLATURE AS A MONOLITH
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PREMORTEM-WHY IS THIS LEGISLATIVE ENDEAVOR DOOMED TO FAILURE?
12,096,000 SECONDS
SIGNAL TO NOISE
NUMBERS
IDEA
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BILLS TO LAW IN TEXAS
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BILLS PASSAGE (FLOWCHART V. PROCESS)
• HAVE A BILL• INTRO/REFER• COMM. ACTION• CALENDAR• FLOOR ACTION• 2ND CHAMBER RINSE
&REPEAT• RECONCILE (IF NEEDED)• EXECUTIVE ACTION
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INTRODUCTION
TEXAS LEGISLATIVE COUNCIL ARE THE KEEBLER ELVES OF LEGISLATIVE
DRAFTING
http://www.tlc.state.tx.us/legal/dm/draftingmanual.pdf#page=156
COOKBOOK TO BILL DRAFTING
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THERE ARE A LOT OF RULES (SORT OF)
Article 3, Texas Constitution
Both Houses have Rules governing
process
(form follows function)
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House Rules & Precedents• TRCP/TRAP for the legislature
• Chair makes rulings
• Chair’s rulings become precedent—recorded in House Journal
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No substantive rulings…• No ruling on substantive constitutional
questions:“[C]onstitutional issues on which the chair will rule are procedural and extremely limited in scope. As for more substantive constitutional questions, the chair will continue to exercise restraint and will rely on the availability of redress in the courts to remedy other constitutional infirmities.” 84 H.J. Reg. 3947-48 (Walle point of order on SB 735).
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INTRODUCTION AND REFERRAL• BILL MOVED FROM POSSESSION OF
AUTHOR TO CLERK ON TO COMMITTEE
MAJ. DIFF WITH FEDS:• CAN ONLY GO TO ONE COMMITTEE• FINAL DECISION MAKER IS PRESIDING
OFFICER
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COMMITTEE PROCESS• COMMITTEE WEIGHS BILL, DETERMINES IF
TESTIMONY IS NEEDED, TAKES TESTIMONY, MAKES CHANGES TAKES ACTION
• MAJ. DIFF. WITH FEDS• TIME COMPRESSION• LIMITATIONS ON SCOPE OF CHANGES• RULES REGARDING HEARINGS VARY BETWEEN HOUSES
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CALENDARING PROCESS• LEGISLATIVE HOUSE DETERMINES METHOD BY WHICH ALL (OR
SOME) OF COMMITTEE SUGGESTIONS ARE HEARD BY CHAMBER
• MAJ. DIFF. WITH FEDS• NO FUNCTIONAL EQUIVALENT OF FED CHAMBERS OPERATION ON CALENDARING
• SPECIAL RULES ARE RARE (BUDGET AND SUNSET)
• HOUSES DIVIDE METHODS OF ACTION ON CONTESTED AND LOCAL AND UNCONTESTED
• “2/3RD RULE” AND HOUSE CALENDARS COMMITTEE
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FLOOR ACTION• MEMBERSHIP CONSIDERS PASSAGE,
MAKES CHANGES, FINAL VOTE
• MAJ. DIFF. WITH FEDS• TIME, PLACE, AND MANNER LESS STRUCTURED• ALLOWABLE DEBATE• ALLOWABLE AMENDMENTS
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RINSE AND REPEAT IN 2ND CHAMBER
• IDENTICAL PROBLEMS TO FEDS: TIME COMPRESSION, EVERYONE THINKS THEY CAN IMPROVE ON YOUR BILL
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RECONCILE (IF NECESSARY)• THREE OPTIONS:
• CONCUR• CONFERENCE• NO!
• STRIP AMENDMENTS/DIE
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EXECUTIVE ACTION
• VETO WORKS SLIGHTLY DIFFERENT IN TEXAS
• SO DOES VETO OVERRIDE
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WHAT ARE THE ODDS?
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FILED
HEARING
1ST H
OUSE
2ND H
OUSELA
W
01000200030004000500060007000
6476
3711
18751323 1280
84 R (OR WHAT YOU CAN DO IN 140 DAYS)
BILLS
Axis Title
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182 ACTORS HAVE 140 DAYS• 6276 BILLS FILED
• 1323 BILLS PASSED = 21%
• 43 =3.2%
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FY 2014 SCOTEX Stats:
• 792 PFRs filed• 93 cases added• 96 disposed–60% reversed,
17% affirmed,10% mixed• 45 pending (fewest since
1995)• Average time to dispose
of cases: 155 days
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CAN’T WE ALL GET ALONG• “Entering a final judgment is a core judicial
power; it falls within that realm of judicial proceedings ‘so vital to the efficient functioning of a court as to be beyond legislative power.’ Thus, the 45-day time frame provided for in subsection (b) is a constitutionally intolerable imposition on a court's power to enter a final judgment and a violation of separation of powers.”
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What to do with 1280 new laws?
• How do you orderly incorporate new measures into existing law in a thoughtful manner that is able to be used?
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ORGANIZATION OF TEXAS STATUTES
• TEXAS STATUTES ARE LOCATED IN ONE OF THREE PLACES:
• SESSION LAWS;• TEXAS CIVIL STATUTES; AND • 1 0F 27 CODES
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SESSION LAWS• THINK OF THIS AS A TEMP FILE
• SMALL NUMBER OF STATUTES NOT PLACED IN A CODE OR REVISED STATUTES
• MOST WILL BE ASSIGNED ARTICLE NUMBER OF TO A CODE IN THE NEXT INTERIM (“cleanup bills”)• (Practice note: some are footnoted in other places; local issues )
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CIVIL STATUTES (VERNON’S REVISED TEXAS STATUTES)
• All state statutes in 1925 were revised (“Accountants” (Article 1) to Wreck” (Article 8324))
• The next major revision (“Codification”) begins in 1963.
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CODES
• LEG. CHARGES TEXAS LEGISLATIVE COUNCIL TO EXECUTE A “PERMANENT STATUTORY REVISION PROGRAM”
• SECTION 323.007, GOVERNMENT CODE
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http://www.tlc.state.tx.us/code_overview.htm
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STATUTORY INTERPRETATION• TEXAS HAS STATUTES ON HOW TO
INTERPRET STATUTES
• SLIGHTLY DIFFERENT INTERPRETATIONS FOR ITEMS IN CODES v. STATUTES (v. SPECIAL RULES OF INTERPRETATION)
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CODE CONSTRUCTION ACT
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UNIFORM CONSTRUCTION OF UNIFORM ACT
UCC; UEFJA; UCCAJEA
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CIVIL STATUTES CONSTRUCTION
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RESEARCHING TEXAS LEGISLATIVE HISTORY
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GOOD NEWS
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We initially recognize that nothing in the legislative history of Chapter 64 indicates a legislative intent to foreclose an appeal of the convicting court's Chapter 64.03(a)(2) determinations. (14) …The House Criminal Jurisprudence Committee later amended the Senate Jurisprudence Committee's version of Article 64.05 to authorize an "appeal of a finding under Article 64.03 or 64.04." The House Criminal Jurisprudence Committee bill analysis explained that this amendment "provides for an appeal of a convicting court's determination to order testing" (16) under Article 64.03, and the House Research Organization bill analysis also explained that this amendment authorized "[a]ppeals of orders for tests [under Article 64.03] or of findings about test results [under Article 64.04]." (17)
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Outline of Texas Legislative Historyhttp://www.lrl.state.tx.us/legis/legintent/legIntent.cfmCompiling Texas Legislative Historyhttp://www.lrl.state.tx.us/legis/legintent/LegIntentBrochure.pdf
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STATUTORY INTERPRETATION
• Are the legislature and the judiciary speaking the same language?
• (A story told in three concurring opinions)
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FURTHER, THERE ARE OTHER APPROPRIATE USES FOR LEGISLATIVE HISTORY
• “An appellate opinion is not a mere recitation of legal standards and conclusions. It is that, to be sure, but it is also, perhaps more importantly, one part of a dialogue between parties, citizens, legislators, and judges—a dialogue that provides a historical record of the relevant controversy.”
• “We tell these stories because doing so is crucial to our legitimacy. Our judgments carry with them a threat of state authority. As justification for the coercive impulse behind our decisions, we give not only a conclusion but also a narrative,by which we seek to legitimize our decision by placing it in historical context, demonstrating that it is consistent with our notions of justice—and, indeed, that it comports with the state of the law.”
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FURTHER, THERE ARE OTHER APPROPRIATE USES FOR LEGISLATIVE HISTORY
• “An appellate opinion is not a mere recitation of legal standards and conclusions. It is that, to be sure, but it is also, perhaps more importantly, one part of a dialogue between parties, citizens, legislators, and judges—a dialogue that provides a historical record of the relevant controversy.”
• “We tell these stories because doing so is crucial to our legitimacy. Our judgments carry with them a threat of state authority. As justification for the coercive impulse behind our decisions, we give not only a conclusion but also a narrative,by which we seek to legitimize our decision by placing it in historical context, demonstrating that it is consistent with our notions of justice—and, indeed, that it comports with the state of the law.”
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THE ROAD TO HELL IS PAVED WITH LEGISLATIVE HISTORY (Klein v. Hernandez, 315 S.W.3d 1)
“So long as judges resort to external materials even when statutes are clear, lawmakers and lobbyists will keep peppering the legislative record with their preferred interpretation, not to inform legislators enacting statutes but to influence judges interpreting them. And then, when litigation ensues, statutory construction devolves into statutory excavation. The legal scavenger hunt begins, and the often-contradictory tidbits are unearthed and cited—perhaps inaccurately, selectively, or misleadingly—in order to hoodwink earnest judges and enable willful ones to reach a decision foreclosed by the text itself.”
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• The Court says the Code Construction Act "guides our analysis“ and permits consideration of several extra-textual factors beyond the Legislature's chosen language, including legislative history. The Act, phrased in permissive language ("a court may consider"),indeed invites judges to consult factors like legislative history "whether or not the statute is considered ambiguous on its face." Several of our cases, both before and after enactment of the Code Construction Act, posit a simpler and less-manipulable principle: unambiguous text equals dispositive text.
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Hecht (Concuring) in Entergy• Only every so often do we come right out and brand a
text with the a-word, as if it were a mark of shame. It seems nicer to call a statute unclear or better yet, just leave that implication.But the truth is that the meaning of statutory language is often reasonably disputed and therefore ambiguous to some extent, and resolving reasonable disputes with reason, rather than by denying their reasonableness, would result in a sounder jurisprudence.
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HECHT: “Two great evils attend this course”
• One is that judges will use analysis of reasonable disagreements over meaning as a guise for substituting their own preferences in place of the legislature’s. This would trespass upon the boundary between judicial and legislative spheres that is fundamental to our structure of government.
• The other is that in the search for the meaning of a statutory provision, courts will grasp at all sorts of statements made before, during, and after the process of enactment, whether by legislators or others, as relevant or even authoritative.
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Hedges and Townsend Article
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Other Helpful Items You May Want to Consider
THE ART OF STATUTORY CONSTRUCTION: TEXAS STYLE
Ron Beal
• http://www.baylor.edu/content/services/document.php/180393.pdf
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• http://www.adjtlaw.com/assets/RT%20&%20AH%202007%20statutory%20interpretation.pdf
• (For the Parable of Prof. Dow’s Goldfish)
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Reading Statutes and BillsBy Texas Legislative Council
• http://www.tlc.state.tx.us/pubslegref/readingabill.pdf
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MODERN PROBLEMS
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Question 1 • Pick the correct answer- All the problems in
statutory interpretation in Texas stems from:• The Legislature-because they can’t write clear laws • The Judiciary-because the look for statutory
problems where none in fact exist; or• Lawyers-because they inappropriately use statutory
interpretation to advance their client’s position
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Question 2: What Other Uses of the Study of Statutory Interpretation and Regulation Exist?
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Question 3: the $1B Question
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Southwest Royalties v. Combs
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PETITIONER’S ARGUMENTS
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Respondent’s Argument